Abstract
Understanding the institutional context of Australia’s parliamentary committee system is critical when evaluating the impact of this system on the case study Acts and identifying options to improve its rights-enhancing capacity. This chapter introduces the Australian parliamentary committee system, with a focus on the four committees studied and how they fit within the broader parliamentary landscape.
This chapter also provides a broader overview of counter-terrorism law making in Australia since September 2011, sketching some of the domestic and international circumstances in which Australia’s modern counter-terrorism framework was developed and introduced. This chapter lays the foundation for a more detailed exploration of how parliamentary committees interact with the different law-making institutions at the federal level and the role they played in directly and indirectly identifying and addressing rights issues within the case study Acts.
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Notes
- 1.
For example, in the year 2015, the Senate sat for a total of 60 days and passed 177 separate Acts. In 2010, the Senate sat for only 46 days and passed 150 Acts.
- 2.
Select Committees of the Senate emerged as the first parliamentary committees on the Commonwealth scene, followed by the establishment of two joint committees (Public Accounts and Public Works) in 1913. Subsequently, a third category, Standing Committees, was introduced to provide for committees with more permanent membership and powers. See Reid and Forrest 1989 at pp. 368–70; Odgers 2012 Chap. 16.
- 3.
Each committee was comprised of six Senators: three appointed by government, and the other three by the Leader of the Opposition in the Senate in consultation with independents and minor parties. The legislation committees had government-appointed Chairs with casting votes, assuring a government majority. In contrast, the references committees had non-government Chairs, and thus non-government majorities.
- 4.
In 2017, the SSCSB began publishing its scrutiny comments on recently introduced Bills (including responses received on matters previously considered by the committee) in one report, the Scrutiny Digest. However, the Scrutiny Digest continues to be divided into initial reports on the Bill (previously called ‘Alert Digests’, now called ‘Initial Scrutiny’) and concluding reports on the Bill (previously called ‘Reports’ now called ‘Commentary on Ministerial Responses’).
- 5.
For example, the SSCSB reported that: ‘[f]rom 2001 to 2011 the committee considered a total of 2524 bills and commented on 1144 or 45.3 per cent of these bills. During the same period 574 bills or 22.7 per cent of all bills were amended. Of the amended bills the committee commented on 125 amendments or 21.8 per cent.’ SSCSB 2014at para [2.25].
- 6.
In March 2002, the Parliamentary Joint Committee on the Australian Security and Intelligence Organisation, Australian Secret Intelligence Service and Defence Signals Directorate (the PJC ASIO, ASIS and DSD) was established, replacing the former Parliamentary Joint Committee on ASIO, which was provided for under the Australian Security Intelligence Organisation Act 1979.
- 7.
The Australian Intelligence Community is comprised of ASIO, ASIS, Australian Geospatial-Intelligence Organisation (AGO), Defence Intelligence organisation (DIO), Australian Signals Directorate (ASD) and Office of National Assessments (ONA).
- 8.
For example in 2012 there were 3 weeks when the House of Representatives was sitting when the Senate was not and 2 weeks when the Senate was sitting when the House was not (out of a total of 20 sitting weeks).
- 9.
For example, the Crimes (Hostages) Act 1989 (Cth) implemented the International Convention Against the Taking of Hostages, and the Crimes (Internationally Protected Person) Act 1976 (Cth) implemented the Convention on the Prevention and Punishment of Crimes against Internationally Protected Persons.
- 10.
These laws included: Security Legislation Amendment (Terrorism) Act 2002 (Cth); Border Security Legislation Amendment Act 2002 (Cth); Criminal Code Amendment (Suppression of Terrorist Bombings) Act 2002 (Cth); Suppression of the Financing of Terrorism Act 2002 (Cth); Australian Security Intelligence Organisation Legislation Amendment (Terrorism) Act 2003 (Cth); Crimes Amendment Act 2002 (Cth); Criminal Code Amendment (Offences Against Australians) Act 2002 (Cth); Telecommunications Interception Legislation Amendment Act 2002 (Cth); and Criminal Code Amendment (Terrorism) Act 2003 (Cth). In addition to this package of Bills, a range of other legislative measures were introduced in the first half of 2002 that contributed to the Howard Government’s counter-terrorism policy framework and that were subject to scrutiny by parliamentary committees. These include the Proceeds of Crime Bill 2002 (Cth), the Proceeds of Crime (Consequential Amendments and Transitional Provisions) Bill 2002 (Cth), and the Criminal Code Amendment (Espionage and Related Offences) Bill 2002 (Cth).
- 11.
The package of laws reviewed were: Security Legislation Amendment (Terrorism) Act 2002 (Cth); Suppression of the Financing of Terrorism Act 2002 (Cth); Criminal Code Amendment (Suppression of Terrorist Bombings) Act 2002 (Cth); Border Security Legislation Amendment Act 2002 (Cth); Telecommunications Interception Legislation Amendment Act 2002 (Cth) and the Criminal Code Amendment (Terrorism) Act 2003 (Cth).
- 12.
The election was held on 24 November 2007. Under the leadership of Kevin Rudd, the ALP was returned to office with 83 seats. The Coalition lost control of the Senate, but still held 37 seats – five more than the government. The balance of power in the Senate was shared between Nick Xenophon, Steve Fielding and the five Greens.
- 13.
For example, the Bill pursued the amendments proposed in the discussion paper that related to the treason offences in the Criminal Code; the urging violence offences (previously known as the sedition offences) in the Criminal Code; the ‘dead-time provisions’ in the Crimes Act; the bail provisions in the Crimes Act; the introduction into the Crimes Act of a new emergency warrantless entry and search power; and National Security Information (Criminal Proceedings) Act 2004 (Cth).
- 14.
Kevin Rudd became Prime Minister for the second time when he replaced Julia Gillard on 27 June 2013 but was unable to save the ALP from defeat in the 2013 federal election on 7 September 2013, which saw the Coalition Government elected with a comfortable majority in the House.
References
Cases
Lodhi v The Queen (2007) 179 A Crim R 470, 487 [67].
Lodhi v R [2007] NSWCCA 360.
R v Lodhi [2006] NSWSC 571.
R v Lodhi [2006] NSWSC 691.
R v Mallah [2005] NSWSC 317; [2005] NSWSC 358
R v Thomas. (2006). VSCA, 165. [4].
Thomas v Mowbray (2007) 233 CLR 307.
Ul-Haque v The Queen. (2006). NSWCCA, 241.
Bills
House or Representatives. (2019). Counter-terrorism (temporary exclusion orders) Bill 2019 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r6311
House or Representatives. (2019). Identity-matching services Bill 2019 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_LEGislation/Bills_Search_Results/Result?bId=r6387
House or Representatives. (2019). Australian Passports Amendment (Identity-matching Services) Bill 2019 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r6386
House or Representatives. (2019). Counter-terrorism (temporary exclusion orders) Bill 2019 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r6311
House of Representatives. (2018). Telecommunications and Other Legislation Amendment (Assistance and Access) Bill 2018. Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r6195
House of Representatives. (2015). Telecommunications (Interception and Access) Amendment (Data Retention) Bill 2015 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_LEGislation/Bills_Search_Results/Result?bId=r5375
House of Representatives. (2015). Australian Citizenship Amendment (Allegiance to Australia) Bill 2015 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r5507
House of Representatives. (2014). Counter-Terrorism Legislation Amendment Bill (No 1) 2014 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s982
House of Representatives. (2010). Human Rights (Parliamentary Scrutiny) Bill 2011 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r4420
House of Representatives. (2010). National Security Legislation Amendment Bill 2010 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r4435
House of Representatives. (2004). Anti-terrorism Bill 2004 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r2032
House of Representatives. (2004). Anti-Terrorism Bill (No 2) 2005 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r2469
House of Representatives. (2004). Surveillance Devices Bill 2004 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r2010
House of Representatives. (2003). Australian Security Intelligence Organisation Legislation Amendment (Terrorism) Bill 2003 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1763
House of Representatives. (2003). Criminal Code Amendment (Hamas and Lashkar-e-Tayyiba) Bill 2003 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1925
House of Representatives. (2003). Criminal Code Amendment (Hizballah) Bill 2003 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1826
House of Representatives. (2003). Criminal Code Amendment (Terrorist Organisations) Bill 2003 (Cth). Canberra: Parliament of Australia.
House of Representatives. (2002). Criminal Code Amendment (Espionage and Related Offences) Bill 2002 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1475
House of Representatives (2002). Proceeds of crime Bill 2002 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1467
House of Representatives. (2002). Proceeds of Crime (Consequential Amendments and Transitional Provisions) Bill 2002 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1515
House of Representatives. (2002). Security Legislation Amendment (Terrorism) Bill 2002 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1516
House of Representatives. (2002). Australian Security Intelligence Organisation Legislation Amendment (Terrorism) Bill 2002 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=r1539
Senate. Counter-Terrorism Legislation Amendment (Foreign Fighters) Bill 2014 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_LEGislation/Bills_Search_Results/Result?bId=s976
Senate. (2010). Independent National Security Legislation Monitor Bill 2010 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s712
Senate. (2008). Independent Reviewer of Terrorism Laws Bill 2008 (No 2) (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s634
Senate. (2006). Criminal Code Amendment (High Risk Terrorist Offenders) Bill 2016 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s1039
Senate. (2004). Telecommunications (Interception) Amendment (Stored Communications) Bill 2004 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s447
Senate. (2004). National Security Information (Criminal Proceedings) Bill 2004 (Cth). Canberra: Parliament of Australia. https://www.aph.gov.au/Parliamentary_Business/Bills_Legislation/Bills_Search_Results/Result?bId=s437
Legislation
Anti-terrorism Act 2004 (Cth).
Anti-Terrorism Act (No 2) 2005 (Cth).
Australian Citizenship Amendment (Allegiance to Australia) Act 2015 (Cth).
Australian Human Rights Commission Act 1986 (Cth).
Australian Security and Intelligence Organisation Act 1979 (Cth).
Australian Security Intelligence Organisation Legislation Amendment (Terrorism) Act 2002 (Cth).
Australian Security Intelligence Organisation Legislation Amendment (Terrorism) Act 2003 (Cth).
Counter-Terrorism Legislation Amendment Act (No 1) 2014 (Cth).
Counter-Terrorism Legislation Amendment (Foreign Fighters) Act 2014 (Cth).
Counter-Terrorism (Temporary Exclusion Orders) Bill 2019 (Cth).
Crimes Act 1914 (Cth).
Criminal Code Act 1995.
Human Rights (Parliamentary Scrutiny) Act 2011 (Cth).
Independent National Security Legislation Monitor Act 2010 (Cth).
Inspector-General of Intelligence and Security Act 1986 (Cth).
Intelligence Services Act 2001 (Cth).
International Convention Against the Taking of Hostages, and the Crimes (Internationally Protected Person) Act 1976 (Cth).
Migration Act 1958 (Cth).
National Crime Authority Act 1984 (Cth).
National Security Information (Criminal Proceedings) Act 2004 (Cth).
National Security Legislation Amendment Act 2010 (Cth).
Ombudsman Act 1976 (Cth).
Parliamentary Joint Committee on Law Enforcement Act 2010 (Cth).
Prevention of Terrorism Act 2005 (UK).
Proceeds of Crime Act 2001 (Cth).
Security Legislation Amendment (Terrorism) Act 2002 (Cth).
Telecommunications (Interception and Access) Amendment Act 2008 (Cth).
Telecommunications (Interception and Access) Amendment (Data Retention) Act 2015 (Cth).
Telecommunications (Interception) Act 1979 (Cth).
International Law Materials
United Nations Security Council Resolution 1373 SC Res 1373, UN SCOR, 4385th mtg, UN Doc S/RES/1373 (28 September 2001).
UN Commission on Human Rights, Message by 17 independent experts of the Commission on Human Rights on the occasion of Human Rights Day, S/RES/1805(2008), UN Doc E/CN.4/2002/137 (20 March 2008).
UN Human Rights Committee, Consideration of Reports Submitted by States Parties Under Article 40 of the Covenant Concluding observations of the Human Rights Committee: Australia, 95th sess, UN doc CCPR/C/AUS/CO/5 (7 May 2009) [11].
United Nations Security Council Resolution SC Res 2178, UN SCOR, 7272nd mtg, UN Doc S/RES/2178 (24 September 2014). http://www.un.org/en/sc/ctc/docs/2015/SCR%202178_2014_EN.pdf.
Parliamentary Materials
Standing Orders
Senate, Parliament of Australia, Standing Order, Chapter 5, Orders 17 to 39. (17 November 2017). https://www.aph.gov.au/Parliamentary_Business/Chamber_documents/Senate_chamber_documents/standingorders/b00/b05
Senate, Parliament of Australia, Standing Order 25 (2000). https://www.aph.gov.au/Parliamentary_Business/Chamber_documents/Senate_chamber_documents/standingorders/b00/b05
Senate, Parliament of Australia, Standing Order 24A (13 February 1997). https://www.aph.gov.au/Parliamentary_Business/Chamber_documents/Senate_chamber_documents/standingorders/b00/b05
Parliamentary Debates
Commonwealth, Parliamentary Debates, House of Representatives, 4 December 2008, 12549 (Kevin Rudd, Prime Minister). https://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id:%22chamber/hansardr/2008-12-04/0000%22
Commonwealth, Parliamentary Debates, Senate, 24 July 2019, 772 (Kristina Keneally). https://www.aph.gov.au/Parliamentary_Business/Hansard/Hansard_Display?bid=chamber/hansards/f1e272cd-753f-4b97-bfb4-516fc5f0f19d/&sid=0000
Commonwealth, Parliamentary Debates, House of Representatives, 30 September 2010, 271 (Robert McClelland, Attorney-General). https://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id:%22chamber/hansardr/2010-09-30/0000%22
Commonwealth, Parliamentary Debates, House of Representatives, 13 March 2002, 1143 (Simon Crean, Leader of the Opposition). https://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id:%22chamber/hansardr/2002-03-13/0000%22.
Parliamentary Committee Reports
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Moulds, S. (2020). The Australian Landscape and the Making of Counter-Terrorism Laws. In: Committees of Influence. Springer, Singapore. https://doi.org/10.1007/978-981-15-4350-0_3
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